2nd Administrative Reforms Commission‟s 10th Report titled “Refurbishing of Personnel
Administration – Scaling New Heights”
Details of Government‟s decisions on recommendations of 2nd Administrative Reforms
Commission
Sl. Recommendations
made
by
No. Administrative Reforms Commission
1.
2.
Government‟s decision
1. (Para 5.3.6) Stage of Entry into the
Civil Services
a. Government of India should establish
National
Institutes
of
Public
Administration to run Bachelor‟s Degree
courses in public administration/
governance/ management. In the long run
it is expected that these specialized
centres of excellence (National Institutes
of Public Administration) would evolve
as major sources of civil services
aspirants.(1)
(a) to (i) The setting up of specialized institutions
may deny equal opportunities to all candidates. It
was decided to request all Central Universities in
the country to have “Public Administration” as a
subject at
under graduate level. It was also
decided that all candidates coming to government
service through the Civil Services Examination
must go
through a compact paper in Public
Administration
prescribed by the Expert
Committee of the Ministry of Human Resource
Development, during the induction training
b. Selected Central and other Universities programme.
should also be assisted to offer such
graduate level programmes in public
administration/
governance/public
management
which
will
produce
graduates to further expand the pool of
eligible applicants to the civil services.(2)
3.
c. The courses offered in these
universities should include core subjects
such as the Constitution of India, Indian
legal system, administrative law, Indian
economy, Indian polity, Indian history
and culture apart from optional
subjects.(3)
4.
d. Graduates of the above mentioned
special courses from the National
Institutes of Public Administration and
selected universities would be eligible for
appearing in the Civil Services
Examinations. Further, graduates in other
disciplines would also be eligible to
appear in the Civil Services Examination
provided they complete a „Bridge Course‟
Page 1 of 27
Sl. Recommendations
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No. Administrative Reforms Commission
Government‟s decision
in the core subjects mentioned above. The
Bridge course should be run by the same
selected national institutes/ universities,
which conduct the graduate level courses
stated in (c) above.(4)
5.
e. Liberal need-based scholarships should
be provided to students admitted to the
Institutes/Universities.(5)
6.
f. An „Expert Committee‟ should be
appointed
immediately
by
the
Government in consultation with UPSC
to develop the curricula and determine the
admission policy to these selected
institutes/universities.
This Committee should inter alia have the
following terms of reference:
i. Lay down norms for identification
universities and institutes where the said
courses would be conducted.
ii. Design the content of the curricula for
the said courses in public administration.
iii. Prescribe the modalities for admission
to these courses.
iv. Prescribe the modalities and design of
the bridge courses.
The Commission strongly recommends
that the Expert Committee be appointed
straightway so that the new courses could
be
started
in
some
of
these
institutions/universities from the coming
academic year. The Commission also
feels that the bridge courses and their
effectiveness should be reviewed based
on the experience of five years.(6)
7.
g. Since this is a major reform relating to
an important area of governance and will
need coordinated guidance, especially in
the initial years, a high-level
oversight/coordination committee with
the Prime Minister as Chairman may be
constituted to meet once in three months
and give guidance to the implementing
agencies and concerned institutions.(7)
Page 2 of 27
Sl. Recommendations
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No. Administrative Reforms Commission
8.
h. The reforms to the scheme of the
examination system as recommended in
paragraph 5.5 may be taken up
immediately.
Examination
and
Recruitment reforms following the
introduction of public administration
/governance management as a fullfledged degree course in National
Institutes of Public Administration and
selected universities would take some
time to be operationalised. Till then, the
existing system, where students from all
disciplines can appear for the competitive
examinations, may continue (8).
9.
i. Students who have acquired a
graduation degree in the above-mentioned
course would have option to join any
other career of their choice either in the
public or private sector.(9)
Government‟s decision
2. (Para 5.4.17) Age of Entry and
Number of Attempts
10.
a. The permissible age for appearing in
the Civil Services Examination should be
21 to 25 years for general candidates, 21
to 28 years for candidates from OBC and
21 to 29 years for candidates from SC/ST
as also for those who are physically
challenged.(10)
(a): It was decided that the upper age limit should
26 years for Unreserved Candidates, 28 for OBC, 29
for SC/ST Candidates with additional 2 years for
Physically Challenged in each category.
11.
b. The number of permissible attempts in
the Civil Services Examination should be
3, 5, 6 and 6 respectively for general
candidates, candidates from OBC,
candidates from SC/ST and physically
challenged candidates respectively.(11)
(b) It was decided that 3 for Unreserved Candidates,
5 for OBC, 6 for SC/ST Candidates with additional
2 attempts for Physically Challenged candidates in
each category.
The above provision regarding reduction of upper
age limit and number of attempts will be
implemented from Civil Service Exam, 2015.
Page 3 of 27
Sl. Recommendations
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12.
Government‟s decision
(c) It was decided to retain 1st August in the year
c. The present cut-off date for of examination as the cut-off date for the eligibility
determining the eligibility in terms of age as recommended by 2nd ARC.
(i.e. 1st of August in the year of the
examination) may continue.(12)
3. (Para 5.5.5.3) Structure of the Civil
Services Examination
13.
14.
a. Structure of Examination: Either of the
following two models may be adopted for
compressing the examination cycle.
i.
The
Preliminary
and
Main
Examinations for the Civil Services
Examination would be conducted
together on two to three consecutive days.
Evaluation of papers for the Main
Examination should be done in case of
only those candidates who have secured a
threshold level of marks in the
Preliminary
Examination.
The
personality test would follow thereafter.
OR
ii. Based on the results of the Preliminary
Examination, candidates eligible for
taking the main examination and the
personality test would be short listed in
accordance with their rankings. Only
these short-listed candidates would be
eligible for appearing in the Main
Examination, which would be conducted
within two months of the Preliminary
Examination. The short list would be
limited to about two to three times of the
number of vacancies available. Thus it
would be possible to start the Personality
Test and the Main Examination almost
simultaneously.(13)
(a) to (c): It decided that the structure of Civil
Services Examination both for the preliminary and
the main examination may not be reviewed further
for now since changes have been implemented very
recently.
b. Content:
i. The Preliminary Examination should
consist of an objective type test having
one or two papers on general studies
including the Constitution of India, the
Indian legal system, Indian economy,
polity, history and culture. There should
Page 4 of 27
Sl. Recommendations
made
by
No. Administrative Reforms Commission
Government‟s decision
be no optional subjects.(14)
ii. The Main Examination should consist
of two papers only in the compulsory
subjects. These compulsory subjects may
include Constitution of India, Indian legal
system, Indian economy, polity, history
and culture etc. The question papers
should be of the conventional descriptive
type. Besides, there should be a separate
essay paper as a part of the Main
Examination.
15.
c. Steps may be taken by DOPT in
consultation with the UPSC to finalise the
syllabi of compulsory subjects for the
both the preliminary and main
examination, for the recruitment cycle
2010. This could later on be dovetailed
with the recommendation of the “Expert
Committee” suggested in Paragraph
5.3.6.(15)
4. (Para 5.7.5) Other Modes
Induction into the Civil Services
of
16.
a. The induction of officers of the State
Civil Services into the IAS should be
done by the UPSC on the basis of a
common examination.(16)
17.
b. UPSC should conduct such an
examination annually for officers from
the State Civil Services who have
completed 8 to 10 years of service in
Grade „A‟ posts. The eligibility criteria
should also include norms such as an
upper age limit of 40 years etc. On the
basis of this examination, the UPSC
should provide the State Governments
with an eligibility list. The State
Governments should fill up their quota
for promotion to the IAS on the basis of
this eligibility list. A maximum of two
attempts should be allowed to an eligible
candidate for taking this examination. To
ensure that the existing officers in the
(a) to (d):The new scheme involving competitive
common examination for induction of officers of
State Civil Services into IAS has been modified
with the approval of Prime Minister (PM) and is to
be placed on the DoPT‟s website for a month.
Thereafter the scheme is to be re-submitted to PM.
These developments were noted.
Since, UPSC had conveyed its consent for
conducting the examination for allied services also,
the Central Government also directed that Cadre
Controlling Authorities may be formally consulted
on this subject.
Page 5 of 27
Sl. Recommendations
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No. Administrative Reforms Commission
Government‟s decision
State Civil Services are not denied
adequate opportunities, the examination
in the next two years may be conducted
for all such eligible officers and the upper
age limit of 40 years may be introduced,
thereafter.(17)
18.
c. The mechanism mentioned above
should also be applied in case of
induction into other All India Services at
the State level.(18)
19.
d. Induction by way of promotion into
Group „A‟ Central Services should, in
addition to consideration of ACRs, also
be done through conduct of examination
on the basis of the criteria as mentioned
above. The nature of the examination,
ratio of posts to be filled by promotion
etc. should be decided by the concerned
departments in consultation with the
UPSC.(19)
20.
5. (Para 5.8.6) Allotment of Cadres to
the All India Services
a. The following amendments should be
made in the new Cadre Allocation Policy
(2008) for allocation of Cadre to
candidates selected for the IAS:
i. At least one vacancy each year in each
of the cadres of AGMUT (only for the
State of Arunachal Pradesh) Manipur,
Meghalaya, Mizoram, Nagaland, Sikkim
and Tripura may be allotted to a
successful candidate domiciled therein
provided he/she has opted for his/her
home State. This may be done even if
there is no „insider‟ vacancy in these
cadres.
(a) The insider AIS officers belonging to NE Cadres
should be given priority for home cadre in Cadre
Allocation Policy (CAP). The CAP, 2008 addresses
the concerns of NE Cadres to a large extent. For
Jammu & Kashmir too, without disturbing the CAP,
2008, DoPT would accommodate cadre transfer
requests in a similar manner.
ii. In case there is more than one eligible
candidate, then the allotment may be done
in the order – ST, SC, OBC and General
candidates, as applicable to each state.
iii. Once the home State quota of the
above-mentioned North Eastern States is
Page 6 of 27
Sl. Recommendations
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No. Administrative Reforms Commission
Government‟s decision
filled up, further allocation may be done
as per the Cadre Allocation Policy (2008),
after making adjustments necessitated by
the changes recommended above.(20)
21.
22.
23.
24.
6. (Para 5.9.6) The Union Public
Service Commission.
a. Promotion of officers through
Departmental Promotion Committees
(DPC), upto the level of Selection Grade
may be delegated to the concerned
Departments. The UPSC should supervise
the functioning of these DPCs through
periodic reviews, audit etc.(21)
b. In the case of disciplinary proceedings,
consultation with the UPSC should be
mandatory only in cases involving likely
dismissal or removal of a government
servant.(22)
(Para 6.8) Capacity Building
a. Every government servant should
undergo a mandatory training at the
induction stage and also periodically
during
his/her
career.
Successful
completion of these trainings should be a
minimum necessary condition for
confirmation in service and subsequent
promotions.
Mandatory
induction
trainings should be prescribed for Group
D staff also before they are assigned
postings.(23)
(a):
Central
Government
accepted
the
recommendation of the ARC that the UPSC should
supervise the functioning of DPC through periodic
review etc. for promotion of officers upto the level
of selection grade which should be delegated to the
concerned departments.
(b): It was noted that another GoM on “measures
that can be taken by the Government to tackle
corruption” has considered the issue and
recommended that consultation with UPSC should
continue. However, second stage consultation with
Central Vigilance Commission (CVC) may be
dispensed with. Necessary orders to do away with
second stage advice of CVC in cases where UPSC‟s
consultation is mandatory have been issued on 26th
Sept. 2011.
(a) & (b) Recommendations accepted. Mandatory
training for all government servants at induction
stage as well as at mid-career should be prescribed.
The National Training Policy should be made
comprehensive by including training plans for
officers in other Central Govt. Ministries/
Departments.
b. A monitoring mechanism should be set
up for overseeing the implementation of
the National Training Policy (1996).(24)
Page 7 of 27
Sl. Recommendations
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No. Administrative Reforms Commission
25.
c. The practice of having a „Common
Foundation Course‟ for all Group „A‟
Services – generalist, specialized and
technical, should continue. For Group „B‟
and „C‟ Services, the Institute of
Secretarial Training and Management
(ISTM) may be developed as the nodal
agency for design and delivery of
common Foundation Courses.(25)
Government‟s decision
(c) Recommendation accepted. Examination for
common foundation course and of the phase
trainings during the probation should be made
qualifying for clearing the probation in the services
where marks of these exams are not counted for
determining inter-se seniority.
26.
d. All civil servants should undergo (d) to (f) Recommendation accepted. Mid-Career
mandatory
training
before
each Training should be made mandatory for all Group A
promotion and each officer/official & B services for promotions.
should be evaluated after each training
programme. Successful completion of the
training programmes should be made
mandatory for promotions.(26)
27.
e. The objective of mid-career training
should be to develop domain knowledge
and competence required for the changing
job profile of the officer. To this end, mid
career learning opportunities relevant to
specific domains or specializations should
be made available for officers.(27)
28.
f. Public servants should be encouraged to
obtain higher academic qualifications and
to write papers for reputed and
authoritative journals.(28)
29.
g. A strong network of training
institutions at the Union and State levels
needs to be built up to cater to the training
requirements of civil servants. However,
instead of spreading resources over a
large number of institutions, a few
institutions should be identified for
capacity building and upgradation.(29)
g) To strengthen training institutions, a Plan
Scheme should be designed to support training
organizations of Central Civil Services and State
ATIs.
30.
h. The composition of governing bodies
of the national training institutions such
as the LBSNAA, SVPNPA, IGNFA and
also the State Administrative Training
Institutes should be broadened by
(h) Recommendation accepted. National Training
Institutes should be provided with greater autonomy
and operational flexibility for which DOPT may
take appropriate action.
Page 8 of 27
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Government‟s decision
inducting eminent experts. The governing
bodies should be adequately empowered
to enable them to discharge their
functions efficiently.(30)
31
i. A national institute of good governance
may be set up by upgrading one of the
existing national/state institutes. This
institute would identify, document, and
disseminate best practices and also
conduct training programmes.(31)
(i) National Institute of Good Governance may be
set up on a public-private partnerships model. It
should function as a think tank and provide policy
advice to Governments.
Further, a Plan Scheme should be designed to
support training organizations of Central Civil
Services and State ATIs. The different services/
Cadre Controlling Authorities should not only open
their institutes but also strengthen it.
8. (Para 7.3.3) Recruitment at Group
„B‟ Level
32.
a. Each Department, dealing with both the
general as well as specialized Services
(Group B), may set up committees to
examine what changes are required in the
system of recruitment and promotions to
these posts. Prima-facie the Commission
is of the view that in order to infuse fresh
thinking, a certain percentage of
vacancies (say 25% every year) at the
level of Section Officer as well as for
other specialized Group „B‟ posts, should
be
filled
through
„Direct
Recruitment‟.(32)
(a):All services should set up Committees to
examine changes required in the system of
recruitments and promotions to Group B posts. It is
felt that induction of Section Officers should be
encouraged through direct recruitment in
Government departments including Central
Secretariat. Recommendations made by the 6th
Central Pay commission to infuse new blood would
also be taken in consideration while preparing the
proposal in this regard and 25% of recruitment at
the level of Section Officer.
9. (Para 7.5.7) Recruitment at
Graduate Level (Group „B‟ nongazetted and Group „C‟)
33.
a. The age limit for all positions (Group
„B‟ non-gazetted and Group „C‟) –
requiring a graduate degree - should be (a) to (c) The DoPT will take up the matter on file
20-25 years for general candidates with a in accordance with the decision taken in respect of
relaxation of three years for OBC and five Para -5.4.17(a).
years for SC/ST and physically
challenged candidates.(33)
34.
b. The examination system should be
based on a well designed objective type
question paper.(34)
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35
c. There is no need to conduct separate
examinations for posts (Group „B‟ nongazetted and Group „C‟) which require a
graduate degree. There should bea
common examination and thereafter, the
candidates should be allowed to apply for
various posts with this examination
score.(35)
36.
10. (Para 7.6.6) Recruitment for LDCs
a. The Commission endorses the stand
taken by the Government that recruitment (a) to (b): Agreed with the part (b) of the
of LDCs should be phased out.(36)
recommendation which prescribes modification in
the existing recruitment process.
37.
b. In case it is felt necessary to recruit
LDCs
in
certain
organizations/
departments, especially in field offices,
their recruitment should be done through
the Staff Selection Commission. The
existing recruitment process needs to be
modified on the following lines:
i. The minimum qualification should be
class 12th pass or equivalent.
ii. The test should comprise of objective
type questions.
iii. Short listed candidates should be
administered a skills test. This should be
conducted on computers so that the
capability of the candidates to use word
processing softwares is also assessed.(37)
38.
Not agreed with part (a) of the
recommendation which related to LDCs and
directed DoPT to refer the matter to the Cabinet for
reconsideration of the its decision taken in the year
2003.
11. (Para 7.7.10) Training for Group
„B‟ and „C‟ Employees
a. Unless a government employee
undergoes mandatory induction training
he/she should not be assigned any regular (a) to (c): Induction training should be made
post.(38)
mandatory for all group B&C employees.
39.
b. Successful completion of prescribed
training courses should be a pre-condition
for all promotions.(39)
40
c. All training programmes should be
concluded with an evaluation of the
Page 10 of 27
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trainees‟ performance, and this should be
an input while assessing their annual
performance.(40)
41.
42.
12. (Para 7.8.6) Group „B‟ and „C‟
Employees: Promotions
a. The posts of Assistants under the
Central Secretariat Service should be
filled in the ratio of 40 per cent by
promotion from UDCs of Central
Secretariat
Clerical Service Cadre, 40 per cent by
Direct Recruitment and 20 per cent
through
Limited
Departmental
Competitive Examination.(41)
13. (Para 7.9.6) Group „B‟ and „C‟
Employees: Performance Appraisal
a. The Appraisal Form should provide the
Reporting Officer with multiple options
on the level of performance against which
he/she would indicate numerically the
level at which the officer reported upon
has performed.(42)
43.
b. The proforma of the Confidential
Reports of Group B and C posts may
include a column wherein the area/field of
interest of the official reported upon (i.e.
Health, Information Technology, Finance,
Transport, Defence etc) is indicated,
which may be considered for future
postings.(43)
44.
c. A mechanism of acknowledging the
receipt of the ACR proforma at various
stages may be adopted so that delays are
avoided and an element of accountability
is introduced.(44)
13. ( Para 8.7) Placement at Middle
Management Level
45.
a. In posting officers in Government of
India, the primary consideration should
be to select the most suitable person for
the post that is on offer.(45)
46.
The recommendation not accepted. As per CCS
Rules, 2009, 75% of vacancies at Asst. Level are
being filled by direct recruitment. This is also in
conformity with the recommendations made by 6th
Pay Commission. As of now, this policy may
continue.
(a)
to (c):Recommendations accepted. The new
Appraisal Form already indicates numerical
grading.
(a) to (g): Assigning of domains to the officers of
All India Services and Central Civil Services will
help in encouraging development of specialization.
However, domain assignment should be done at
completion of 18 years of service as it may not be
b. Domains should be assigned by the possible to identify domains during the first 13
Central Civil Services Authority (the years of service as most of the officers are on the
Page 11 of 27
Sl. Recommendations
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Commission has recommended the
constitution of this Authority in paragraph
No 9.8 of this Report) to all officers of
the All India Services and the Central
Civil Services on completion of 13 years
of service.(46)
47.
48.
Government‟s decision
field assignments in the first 10 years of career. All
services should be identifying the domains where
specialization is needed and domain assignment
should be done in consultation with the officers.
While placing officers in Government of India,
efforts should be to match experience and
specialization with job requirements.
c. The Central Civil Services Authority
should invite applications from all
officers who have completed the
minimum qualifying years of service, for
assignment of domains. The applications
should specify the academic background
of
officers,
their
research
accomplishments (if any) and significant
achievements during their career, relevant
to the domain applied for. A consultative
process should be put in place where the
officers should be interviewed and their
claims to specific domains evaluated. The
Authority should thereafter assign
domains to the officers on the basis of
this exercise. In case some domains do
not attract applicants, the Authority
should assign these domains to officers
with the relevant knowledge and
experience.(47)
d. All vacancies arising at the level of
Deputy Secretary/Director during a
financial year should be identified well
before the beginning of that financial
year, by the Department of Personnel and
Training (DOPT). The Ministries
concerned should also give a brief job
description for these positions. All these
posts and their job description should be
notified to the cadre controlling
authorities of the concerned All India
Services and Central Services. On receipt
of nominations from the cadre controlling
authorities, the DOPT should try to match
the requirements of various positions with
the competencies of the officers in the
„offer list‟. The DOPT should then seek
approval for the entire list from the
Competent Authority.(48)
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49.
e. The Central Civil Services Authority
should be charged with the responsibility
to fixing tenure for all civil service
positions and this decision of the
Authority should be binding on
Government.(49)
50.
f. Officers from the organized services
should not be given „non-field‟
assignments in the first 8-10 years of their
career.(50)
51
g. State Governments should take steps to
constitute State Civil Services Authorities
on the lines of the Central Civil Services
Authority.(51)
Government‟s decision
14. (Para 9.8) Placement at Top
Management Level
52.
a. The present empanelment system for (a)to(g): The decision deferred
short listing
officers for posting at recommendation for the time being.
officers for posting at the SAG level and
above should be replaced by a more
transparent and objective placement
procedure.(52)
on
the
53.
b. At higher levels in government, it is
necessary to ensure that the tasks
assigned to a public servant match his/her
domain competence as well as aptitude
and potential.(53)
54.
c. Ministries should classify all of their
SAG level posts according to their
relevant functional domains.(54)
d. There is need to introduce competition
for senior positions in government (SAG
and above) by opening these positions in
Government (including attached and
subordinate offices) to all Services. This
principle would apply to all posts
including those that are presently
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Government‟s decision
encadred with the organised Group „A‟
Services. In order to operationalise this,
government should make the continued
participation of any of the organised civil
services in the Central Staffing Scheme,
contingent upon the implementation of
this
principle
in
those
Departments/Cadres.
55.
i. For the positions at the Joint
Secretary/SAG level and above, the
Central Civil Services Authority would
invite applications from amongst all the
eligible officers from the All India
Services and Group „A‟ Central Services
which are participating in the scheme.(55)
56.
ii. For positions at the HAG level and
above, the Central Public Service
Authority would, in consultation with
Government, earmark positions for which
outside talent would be desirable.
Applications to fill up these posts would
be invited from interested and eligible
persons from the open market and also,
from serving eligible officers.(56)
57.
iii. While carrying out this exercise, the
Central Civil Services Authority would
stipulate the eligibility criteria, the
required domain expertise as well as the
requirements of qualifications, seniority
and work experience. The Authority
would conduct interviews to short-list
suitable officers for these posts.
Government would make the final
selection on the basis of this shortlist.(57)
58.
e. A Central Civil Services Authority
should be constituted under the proposed
Civil Services Bill. The Central Civil
Services Authority shall be a fivemember body consisting of the
Chairperson and four members (including
the member-secretary). The Authority
should have a full time Member-Secretary
of the rank of Secretary to Government of
India. The Chairperson and members of
Page 14 of 27
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the Authority should be persons of
eminence in public life and professionals
with acknowledged contributions to
society. The Chairperson and members of
the Authority shall be appointed by the
President on the recommendations of a
Committee consisting of the Prime
Minister and the Leader of the Opposition
in the Lok Sabha. (Explanation:- Where
the Leader of the Opposition in the Lok
Sabha has not been recognized as such,
the Leader of the single largest group in
the Opposition in the Lok Sabha shall be
deemed to be the Leader of the
Opposition).(58)
59.
f. The Central Civil Services Authority
should deal with matters of assignment of
domains to officers, preparing panels for
posting of officers at the level of Joint
Secretary and above, fixing tenures for
senior posts, deciding on posts which
could be advertised for lateral entry and
such other matters that may be referred to
it by the Government. (59)
60.
g. A similar procedure should be adopted
for filling up vacancies at SAG level and
higher in the central police agencies. For
example, in the Central Para-Military
Forces the senior positions should be
opened to competition from officers of
the CPMFs, IPS and the Armed Forces
(including those completing their Short
Service Commissions). Similarly for the
intelligence agencies officers from the
armed forces as well as the CPOs with
experience in the field of intelligence
should be considered for postings at
higher levels in the intelligence
agencies.(60)
61.
15. (Para 10.12) Deputation of Civil
Servants to Organizations Outside
Government
a. In drawing up the list of external (a) to (b): Accepted in principle. DOPT has
organizations to which government recently issued consolidated guidelines in this
servants can be permitted to go on regard on 11.01.2012.
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deputation, the primary consideration
should be the objectives and activities of
such organizations and not merely its
organizational structure. For the present
Government should permit deputation of
civil servants only to such organizations
that are engaged in non-profit making
activities.(61)
62.
b. This policy may be reviewed after three
years.(62)
63.
16.
(Para
11.15)
Performance
Management System
a. A good employee performance
appraisal system is a pre-requisite for an
effective
performance
management
system. The existing performance
appraisal system should be strengthened
on the following lines:
� Making appraisal more consultative
and transparent – performance appraisal
systems for all Services should be
modified on the lines of the recently
introduced PAR for the All India
Services.
� Performance appraisal formats to be
made job specific - the appraisal format
prescribed for civil servants should have
three sections i.e. (i) a generic section that
meets the requirements of a particular
service to which the officer belongs, (ii)
another section based on the goals and
requirements of the department in which
he/she is working, and (iii)
a final section which captures the specific
requirements and targets relating to the
post that the officer is holding.
� Performance appraisal should be year
round: provisions for detailed work-plan
and a mid-year review should be
introduced for all Services.
� Guidelines need to be formulated for
assigning numerical rating:
DOPT
should
formulate
detailed
guidelines to guide the reporting and
reviewing
officers
for
assigning
(a): Accepted the recommendation in principle.
New PAR system is being reviewed and DOPT
would work out a modified version which may be
adopted by all Services. This model could be a
comprehensive one with scope for variations for
different work requirements. GoM directed that a
comprehensive model be designed with scope for
variations for different services.
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numerical ratings for their subordinates.
Training modules for implementing
performance management systems
should be designed and introduced for
training
programmes
for
civil
servants.(63)
64.
b. Government should expand the scope (b) to (c) Accepted the recommendations.
of the present performance appraisal
system of its employees to a
comprehensive performance management
system (PMS).(64)
65.
c. In implementing PMS in government,
it must be emphasized that the PMS
should be designed within the overall
strategic framework appropriate to the
particular
ministry/department/organization. It is
also necessary to link individual
contributions to strategic objectives of the
organization. It will therefore be
necessary
for
each
ministry
/department/organization to customize its
PMS
relevant
to
them,
while
incorporating the general features
described in Chapter 11.(65)
66.
d. Annual performance agreements d): It might not be feasible to have annual
should
be
signed
between
the performance agreements.
departmental minister and the Secretary
of the ministry/heads of departments,
providing physical and verifiable details
of the work to be done during a financial
year. The actual performance should be
assessed by a third party – say, the
Central Public Services Authority – with
reference to the annual performance
agreement. The details of the annual
performance agreements and the result of
the assessment by the third party should
be provided to the legislature as a part of
the
Performance
Budget/Outcome
Budget.(66)
17.
(Para
12.5)
Motivating
Civil
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Servants
67
a. There is need to recognise the a) Agreed with the recommendation of the ARC.
outstanding work of serving civil servants
including through National awards.
Awards
for
recognizing
good
performance should also be instituted at
the State and district levels. It must be
ensured that selection for such awards is
made through a prompt, objective and
transparent mechanism because the value
of such awards should not get
compromised by either subjectivity or
lack of transparency. Further, all
organizations should evolve their own inhouse mechanism for rewarding good
performance from simple, verbal and
written appreciation to more tangible
rewards.(67)
68.
b. Selections for foreign assignments (b) The recommendation may not be accepted.
referred to in Paragraph 12.4.3.2 should
be made, based on the recommendations
of the Central Civil Services Authority.
The Authority should follow the due
process of inviting applications from
eligible candidates and preparing a panel
of officers who are most suitable for such
assignments.(68)
69.
c. It should be the responsibility of the (c) & (d). Agreed with the recommendation of the
head of the office to examine the job ARC.
content of each person working in the
organization to ensure that the job content
is meaningful and challenging so that the
employee derives a sense of satisfaction
in performing the tasks assigned to
him/her. The head of the office could seek
the assistance of a professional agency for
this purpose.(69)
70.
d. Each head of office should ensure that
a congenial work environment is created
in the office. His/her success in this
should be an element in evaluating his/her
performance.(70)
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71.
18. (Para 13.4) Accountability
a. A system of two intensive reviews –
one on completion of 14 years of service, (a) & (b): Accepted the recommendations and
and another on completion of 20 years of recommended that a complete review of the
service - should be established for all performance appraisal form be done.
government servants.(71)
72.
b. The first review at 14 years would
primarily serve the purpose of intimating
to the public servant about his/her
strengths and shortcomings for his/her
future advancement. The second review at
20 years would mainly serve to assess the
fitness of the officer for his/her further
continuation in government service. The
detailed modalities of this assessment
system would need to be worked out by
government.(72)
73.
c. The services of public servants, who
are found to be unfit after the second
review at 20 years, should be
discontinued. A provision regarding this
should be made in the proposed Civil
Services Law. Besides, for new
appointments it should be expressly
provided that the period of employment
shall be for 20 years. Further continuance
in government service would depend
upon the outcome of the intensive
performance reviews.(73)
19.
(Para
14.6)
Disciplinary
Proceedings
a. In the proposed Civil Services law, the
minimum statutory disciplinary and
dismissal procedures required to satisfy
the criteria of natural justice should be
spelt out leaving the details of the
procedure to be followed to the respective
government departments. The present oral
inquiry process should be converted into
a disciplinary meeting or interview to be
conducted by a superior officer in a
summary manner without the trappings
and procedures borrowed from court
trials. This would require that the CCS
(CCA) Rules, 1965 be repealed and
74.
Government‟s decision
(c) Did not agree with the recommendation of ARC.
(a) to (d): DoPT issued orders on 26.09.2011. In
cases involving vigilance issues, the consultation
with UPSC will continue while second stage
consultation with CVC has been dispensed with.
However, in those cases where consultation with
UPSC is not required, the second stage consultation
with CVC will continue.
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substituted
regulations.(74)
by
Government‟s decision
appropriate
75.
b. No penalty of removal and dismissal
should be imposed, except by an
Authority, which is at least three levels
above the post which the government
servant is holding. Other penalties – apart
from dismissal and removal – may be
imposed by an Authority which is at least
two levels above the current post of the
government servant. No penalty may be
imposed, unless an inquiry is conducted
and the accused government servant has
been given an opportunity of being
heard.(75)
76.
c. The two-stage consultation with the
CVC in cases involving a vigilance angle
should be done away with and only the
second stage advice after completion of
the disciplinary process, should be
obtained. In addition, for cases involving
a vigilance angle, no consultation with the
UPSC should be required.(76)
77.
d. Consultation with the UPSC should be
mandatory only in cases leading to the
proposed dismissal of government
servants and all other types of
disciplinary cases should be exempted
from the UPSC‟s purview.(77)
20. (Para 15.6) Relations between the
Political Executive and Civil Servants
78.
a. There is a need to safeguard the (a) and (b): A a detailed paper on the matter of
political neutrality and impartiality of the Code of Ethics for Ministers may be prepared first.
civil services. The onus for this lies The matter will be considered later.
equally on the political executive and the
civil services. This aspect should be
included in the Code of Ethics for
Ministers as well as the Code of Conduct
for Public Servants.(78)
79
b. The Commission would like to reiterate
its recommendation made in its Report on
“Ethics in Governance” while examining
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the definition of corruption under the
Prevention of Corruption Act, 1988,
wherein it has been recommended that
“abuse of authority unduly favouring or
harming someone” and “obstruction of
justice” should be
classified as an
offence under the Act.(79)
80.
81.
c. It is essential to lay down certain norms
for recruitment in government to avoid
complaints of favouritism, nepotism,
corruption and abuse of power.
These norms are:
i. Well-defined procedure for recruitment
to all government jobs. (80)
ii. Wide publicity and open competition
for recruitment to all posts.(81)
82.
iii. Minimisation, if not elimination, of
discretion in the recruitment process.(82)
83.
iv. Selection primarily on the basis of
written examination or on the basis of
performance in existing public/ board/
university examination with minimum
weight to interview.
These principles could be included in the
„Civil Services Bill‟ as recommended by
the Commission in Chapter 17.(83)
21. (Para 16.17) Civil Services Code
84.
a. „Civil Services Values‟ and the „Code (a) & (b): Decision deferred.
of Ethics‟ should be incorporated in the
proposed Civil Services Bill.(84)
85.
b. Conduct Rules for civil servants need
to be redrawn based on the values and
code of ethics as outlined in this Chapter
(Chapter 16).(85)
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87.
Government‟s decision
22. (Para 17.5) The Civil Services Law
A new Civil Services Bill may be drafted.
The following salient features may be Decision deferred.
included in the proposed Bill:
I. Title of the Bill: The Bill may be called
„The Civil Services Bill‟.
II. Defnitions: “Civil Services” shall
comprise of all personnel holding civil
posts under the Union.
III. Civil Service Values: The Civil
Services and the Civil Servants shall be
guided by the following values in
addition to a commitment to uphold
the Constitution, the discharge of their
functions:
i. Absolute integrity at all times
ii. Impartiality and non-partisanship
iii. Objectivity
iv. Dedication to public service
v. Empathy towards weaker sections
The Heads of Departments shall be
responsible for promoting these values in
their organizations. The Central Civil
Services Authority may from time to time
review the adoption, adherence to and
implementation of the Civil Service
Values
in
the
departments
or
organizations under the Union.(86)
IV. Code of Ethics: The following
should be included in the Code of
Ethics for civil servants:
i. Integrity: Civil servants should be
guided solely by public interest in their
official decision making and not by any
financial or other consideration either in
respect of themselves, their families or
their friends.
ii. Impartiality: Civil servants in carrying
out their official work, including
functions like procurement, recruitment,
delivery of services etc, should take
decisions based on merit and free from
any partisan consideration.
iii. Commitment to public service: civil
servants should deliver services in a fair,
effective, impartial and courteous manner.
iv. Open accountability: civil servants are
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accountable for their decisions and
actions and should be willing to subject
themselves to appropriate
scrutiny for this purpose.
v. Devotion to duty: civil servants should
maintain absolute and unstinting devotion
towards their duties and responsibilities at
all times.
vi. Exemplary behaviour: civil servants
should treat all members of the public
with respect and courtesy and at all times
should behave in a manner that upholds
the rich traditions of the civil
services.(87)
88.
V. Recruitment and Conditions of
Service: Recruitment and conditions of
service of persons appointed to the
„Public Services‟ shall be governed by
Rules made under this Act. The following
principles of recruitment should be
included for all appointments not routed
through the UPSC or SSC:
i. Well-defined merit based procedure for
recruitment.
ii. Wide publicity and open competition
for recruitment to all posts.
iii. Minimisation, if not elimination, of
discretion in the recruitment process.
iv. Selection primarily on the basis of
written examination or on the basis of
performance
in
existing
public/board/university examination
with minimum weight-age to interview.
An independent agency should audit the
recruitments made outside the UPSC and
SSC systems and advise the government
suitably. This audit should be conducted
under the supervision of the UPSC.(88)
89.
VI. New Conditions of Appointment: (1)
A civil servant, not being a civil servant
recruited or inducted for a short-term
appointment, shall hold office for twenty
years from the date of initial appointment.
(2) The relationship between the Civil
Servant and the Government of India
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during the time he/she holds office shall
also be governed by the rules made in this
regard. All public servants shall be
subjected to two intensive reviews on
completion of 14 years and 20 years of
service respectively. Their further
continuance beyond 20 years will depend
on the outcome of these reviews. It
should be expressly provided that all new
recruitments shall be for a period of 20
years and their continuance beyond 20
years would depend on the outcome of
the intensive reviews.(89)
90.
VII. Appointment to Senior Positions in
Government:
All
positions
in
Government (including in the attached
and subordinate offices) at the level of
Joint Secretary and above would
constitute the „Senior Management Pool‟.
This would apply to all posts including
those that are presently encadred with the
organised Group A Services. All
appointments to positions in this pool
shall be made on the recommendations of
the Central Civil Services Authority,
which would go into the past performance
and also evaluate the future potential of
an officer. The Central Civil Services
Authority should recommend a panel of
officers suitable for a position in the
Government and Government should
choose an officer/person from this
panel.(90)
91.
VIII. Fixation of Tenures: All senior
posts should have a specified tenure. The
task of fixing tenures for various posts
may also be assigned to this independent
agency - Central Civil Services
Authority.(91)
92.
IX. Widening the Pool of Candidates for
Selection to Senior Positions:
Candidates outside the government
system should be allowed to compete for
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certain posts at senior levels (Additional
Secretary and above). The task of
identifying these posts should be
entrusted to the Central Civil Services
Authority.(92)
93.
Dismissal, Removal etc. of Civil
Servants: After the repeal of Articles 310
and 311 (as recommended in the Report
on „Ethics in Governance‟), safeguards
against
arbitrary
action
against
government servants should be provided
in the new law. These safeguards should
include:
i. No penalty of removal and dismissal
should be imposed, except by an
authority, which is at least three levels
above the post which the government
servant is holding.
ii. Other penalties – apart from dismissal
and removal - may be imposed by an
authority which is at least two levels
above the current post of the government
servant.
iii. No penalty may be imposed, unless an
enquiry is conducted and the accused
government servant has been given an
opportunity of being heard.
iv. The Head of an organization should
have powers to lay down the details of the
enquiry procedure, subject to the general
guidelines which may be issued by the
Government from time to time.(93)
94.
XI. A performance management system
should be mandatory for every
organization in the government.(94)
95.
XII. Constitution of the Central Civil
Services Authority:
i. The Central Government shall, by
notification in the Official Gazette,
constitute a body to be known as the
Central Civil Services Authority to
exercise the powers conferred on, and to
perform the functions
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assigned to it, under this Act.(95)
96.
ii. The Central Civil Services Authority
shall be a five-member body consisting of
the Chairperson and four members
(including the member-secretary). The
Authority should have a full time
MemberSecretary of the rank of Secretary to
Government of India. The Chairperson
and members of the Authority should be
persons of eminence in public life and
professionals
with
acknowledged
contributions to society. The Chairperson
and members of the Authority shall be
appointed by the President on the
recommendations of a Committee
consisting of the Prime Minister and the
Leader of the Opposition in the Lok
Sabha. (Explanation:- Where the Leader
of the Opposition in the Lok Sabha has
not been recognized as such, the Leader
of the single largest group in the
opposition in the Lok Sabha shall be
deemed to be the Leader of the
Opposition).(96)
97.
XIII. Functions of the Central Civil
Services
Authority:
The
Central
Authority shall discharge the following
functions:
i. Review the adoption, adherence to and
implementation of the Civil Service
Values
in
the
departments
or
organizations
under
the
Central
Government and send reports to the
Central Government.
ii. Assign domains to all officers of the
All India Services and the Central Civil
Services on completion of 13 years of
service.
iii. Formulate norms and guidelines for
appointments at „Senior Management
Level‟ in Government of India.
iv. Evaluate and recommend names of
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officers for posting at the „Senior
Management Level‟ in Government of
India.
v. Identify the posts at „Senior
Management Level‟ in Government of
India which could be thrown open for
recruitment from all sources.
vi. Fix the tenure for posts at the „Senior
Management Level‟ in Government of
India.
vii. Submit an
Parliament.(97)
98.
annual
report
to
XIV. Creation of Executive Agencies in
Government: Government should be
authorized to create or reorganize some or
all of existing Departments into
„Executive Agencies‟. The role of the
Ministries should primarily be on policy
formulation while implementation should
be left to the Executive Agencies.(98)
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